F I L E D

United States Court of Appeals

Tenth Circuit

PUBLISH

JUN 23 2004

UNITED STATES COURT OF APPEALS

TENTH CIRCUIT

PATRICK FISHER
Clerk

UTAH ENVIRONMENTAL
CONGRESS,
v.

Plaintiff - Appellant,

DALE BOSWORTH, as Chief of the

Forest Service; UNITED STATES
FOREST SERVICE; MARY
ERICKSON, Supervisor of the
Fishlake National Forest,

No. 03-4080

Defendants - Appellees.
Appeal from the United States District Court
for the District of Utah
(D.C. No. 2:01-CV-316-PGC)
Ray Vaughan (Adelaide Maudsley, LeBoeuf, Lamb, Greene & McRae, LLP with
him on the briefs), WildLaw, Montgomery, Alabama, for the Plaintiff-Appellant.
Mark R. Haag (Elise Foster, United States Department of Agriculture; Thomas L.
Sansonetti, Assistant Attorney General; David C. Shilton and Myesha K. Braden,
United States Department of Justice, Environment and Natural Resources
Division, with him on the brief), United States Department of Justice,
Environment and Natural Resources Division, Washington, D.C., for the
Defendant-Appellee.
Before BRISCOE, BALDOCK, and LUCERO, Circuit Judges.

LUCERO, Circuit Judge.

At issue is the extent of the United States Forest Services obligations
under its regulations to monitor management indicator species before approving
forest management activities. Finding the Forest Services monitoring efforts
sufficient, the district court affirmed the Record of Decision authorizing the
Monroe Mountain Ecosystem Restoration Project. Exercising jurisdiction
pursuant to 28 U.S.C. 1291, we REVERSE and REMAND.
I
Monroe Mountain, part of the Fishlake National Forest approximately 140
airline miles south of Salt Lake City in Central Utah, is the center of the Monroe
Mountain Ecosystem Restoration Project (the Monroe Project). The Monroe
Project area covers approximately 50,000 acres, consisting of forest (primarily fir
occasionally mixed with aspen) and non-forest (grass and sagebrush) land.
As part of the National Forest System, the Fishlake National Forest is
maintained under a Forest Management Plan (the Fishlake Forest Plan),
pursuant to the National Forest Management Act (NFMA), 16 U.S.C. 1604;
the Fishlake Forest Plan was approved in 1986. Forest Management Plans are to
be revised every ten to fifteen years and can be amended. 16 U.S.C. 1604(f).
To accomplish NFMAs broad land management responsibilities, the Forest
Service has promulgated regulations, including: further clarification of general
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forest planning procedures, 36 C.F.R. 219.10; minimum forest management

requirements, 36 C.F.R. 219.27; requirements to ensure diversity of plant and
animal species, 36 C.F.R. 219.26; and habitat requirements for native and
desirable non-native species, 36 C.F.R. 219.19.
To execute specific Forest Management Plans, the Forest Service proposes
individual projects. See, e.g., Ohio Forestry Assoc., Inc. v. Sierra Club, 523 U.S.
726, 729730 (1998) (describing the steps involved in proposing and adopting a
site-specific action under the Wayne National Forests Management Plan);
Colorado Environmental Coalition v. Dombeck, 185 F.3d 1162, 1168 (10th Cir.
1999) (The Forest Service implements the Forest Plan by approving . . . or
disapproving particular projects. . . .). Individual projects must comply with the
NFMAs enacting regulations. 16 U.S.C. 1604(i). Specifically, any projects
undertaken by the Forest Service in the Fishlake National Forest must be
consistent with the Fishlake Forest Plan. 16 U.S.C. 1604(i), 36 C.F.R.
219.10(e) (1999). 1

In 2000, the regulations at issue in this case were changed. See 65 Fed.
Reg. 67,514 (Nov. 9, 2000). The regulations in effect at the time of the disputed
Forest Service decisions in this case were the regulations first adopted in 1979,
and amended in 1982 and 1983 (known as the 1982 rule). See 67 Fed. Reg.
72,770 (Dec. 6, 2002). As a result, we will apply the 1982 rule and all references
to the C.F.R. are to the 1999 version, the last published edition before the 2000
revisions.
1

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In 1997, a Forest Service Interdisciplinary Team considered portions of

Monroe Mountain for immediate ecosystem restoration treatment.
(Administrative Record Vol. 2 (2 AR) Doc. 485 at I-2.) After assessing
conditions in the relevant area, the Monroe Mountain Ecosystem Restoration
Project (the Monroe Project) was developed. The Monroe Projects Final
Environmental Impact Statement (FEIS), which analyzes the potential effects of
several management alternatives, states that the primary purpose of the Monroe
Project is to move the forest and grassland ecosystems within the project area
toward properly functioning condition of ecological structure and function. (2
AR Doc. 485 at I-3.) To that end, six distinct objectives were developed: (1)
restore aspen ecosystems, (2) improve watershed conditions, (3) reduce the risk of
large wildfires, (4) reduce the potential of epidemic spruce beetle infestation in
spruce/fir stands, (5) restore the grass/forb ecosystem to improve wildlife and
livestock habitat, and (6) provide timber products for the local economy. To
effectuate these objectives, five management alternatives were analyzed to
determine the potential effects the Monroe Project might have on the area, as
required by the National Environmental Policy Act (NEPA), 42 U.S.C. 4331,
et seq..
Proposing several actions to meet the specific objectives of the Monroe
Project, the selected alternative includes timber harvesting, prescribed burns, and
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sagebrush treatments to Monroe Project land outside of Inventoried Roadless

Areas (IRAs). 2 Action within IRAs was limited by the plan to prescribed
burning. The Forest Services Record of Decision found that the selected
alternative met the six objectives of the Project by: (1) converting over 2,500
acres of mixed conifer/aspen stands to aspen stands, thus restoring an abundance
of aspen to the forest; (2) increasing riparian resiliency by improving understory
vegetation and decreasing sediment production; (3) treating 2,645 acres of mixed
conifer/aspen stands to reduce fuel, thereby decreasing the risk of intense
wildfires; (4) reducing the density of 248 acres of spruce/fir stands, thereby
decreasing the risk of epidemic spruce beetle infestation; (5) converting over
1,300 acres of sagebrush into grass/forb areas, creating more habitat for livestock
and wildlife; and (6) producing approximately 8.7 million board feet of timber,
thus supporting the local economy. Slightly under 5,000 of the 50,000 Monroe
Project area acres were subject to treatment under the selected alternative.
Following the Forest Supervisors authorization of the Monroe Project,
Utah Environmental Congress (UEC) filed suit in district court, alleging the
Forest Services authorization of the Monroe Project violated NEPA, the NFMA,
The Roadless Area Review and Evaluation II (RARE II) was finalized by
the Forest Service in 1979. It created a national inventory of roadless areas
(IRAs) that were potentially suitable for wilderness designation in the National
Wilderness Preservation System. See California v. Block, 690 F.2d 753, 758 (9th
Cir. 1981) (recounting the development of RARE II).
2

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the Administrative Procedure Act (APA), and various Forest Service

regulations. In March 2003, the district court found in favor of the Forest Service
on all claims. UEC appeals, raising two primary allegations of error: (1) that the
Forest Services failure to monitor Management Indicator Species (MIS)
renders its authorization of the Monroe Project violative of the NFMA, the
NFMAs implementing regulations, and the Fishlake Forest Plan; and (2) that the
Forest Services revalidation of roadless areas during the Monroe Project
development, which resulted in some previously labeled roadless areas no longer
being categorized roadless, was illegal because such an action is not authorized at
an individual project level.
II
A
We first address the Forest Services Management Indicator Species
(MIS) monitoring. 3 Judicial review of agency action under 5 U.S.C. 701
706 directs reviewing courts to set aside agency action if it is arbitrary,
capricious, an abuse of discretion, or otherwise not in accordance with law. 5
U.S.C. 706(2)(A). Although our review of an agencys decision is deferential,
we will reverse if the decision is not supported by substantial evidence. Hoyl v.
The NFMA does not create a private right of action. See Kootenai Tribe
of Idaho v. Veneman, 313 F.3d 1094, 1114 n.14 (2002). We review the Forest
Services approval of the Monroe Project as final agency action under the APA, 5
U.S.C. 701706.
3

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Babbitt, 129 F.3d 1377, 1382 (10th Cir. 1997) (citations omitted); Federal Power
Commn v. Transcontinental Gas Pipe Line Corp., 423 U.S. 326, 331 (1976)
(recognizing that if an agencys decision is not supported by the administrative
record made, it must be vacated and the matter returned to the agency for further
consideration). Because we are obligated to undertake an independent review of
the agencys action in this appeal, we are not bound by the District Courts
recitation of the facts below. Olenhouse v. Commodity Credit Corp., 42 F.3d
1560, 1569 n.16 (10th Cir. 1994) (citation omitted).
When reviewing an agencys interpretation of its own regulations, we defer
to the agencys view, unless it is unreasonable, plainly erroneous, or inconsistent
with the regulations plain meaning. Bar MK Ranches v. Yuetter, 994 F.2d 735,
738 (10th Cir. 1993) (citation omitted). In the context of technical or scientific
matters particularly, judicial deference to agency decisions is appropriate,
Wyoming v. United States, 279 F.3d 1214, 1240 (10th Cir. 2002), and choices of
suitable scientific methodology are entrusted to the agency, Custer County Action
Assn. v. Garvey, 256 F.3d 1024, 1036 (10th Cir. 2001).
In the instant case, UEC argues that the district court erred when it found
that [f]or each of the five MIS at issue [in this case], the Forest Service has
collected appropriate quantitative population data or has a valid reason for not
collecting such data. Utah Environmental Congress v. Bosworth, et al., No.
2:01-CV-00316PGC, slip op. at 18 (D. Utah Mar. 27, 2003) (Dist. Ct. Order).
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On appeal UEC maintains that the Forest Service did not (1) collect appropriate
quantitative data and (2) improperly relied on habitat trends rather than actual
species population trends. As a result, UEC argues, the Forest Services decision
to authorize the Monroe Project was arbitrary and capricious.
1
The Fishlake Management Plan subdivided the Fishlake National Forest
into nineteen separate Management Areas, each with its own management
practices. The Monroe Project covers six different Management Areas within the
Fishlake National Forest; however, ninety-two percent of the Monroe Project area
is within Management Area 4B. Area 4B is designated Habitat for Management
Indicator Species, which indicates that priority should be given to managing the
lands in accordance with the habitat needs of MIS. (1 AR Doc. 460 at S-9.) To
this end, the Forest Service is required to estimate the effects of each
[management] alternative on fish and wildlife species that are selected because
their population changes are believed to indicate the effects of management
activities. 36 C.F.R. 219.19(a)(1). The species thus selected as MIS should
represent endangered or threatened plants and animals; species with special
habitat requirements which may be affected significantly by planned activities;
commonly hunted, trapped, or fished species; special interest species; and plant or
animal species selected because their population changes are believed to indicate
the effects of management activities on other species. Id. Because of their
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representative capacity, MIS have been variously described as a bellwether a

class representative, Inland Empire Pub. Lands Council v. United States Forest
Serv., 88 F.3d 754, 762 n.11 (9th Cir. 1996), a management short-cut, Forest
Guardians v. United States Forest Serv., 180 F. Supp. 2d 1273, 1281 (D.N.M.
2001), and a proxy for determining the effects of management activities on other
species, Dombeck, 185 F.3d at 1170. As the Ninth Circuit has observed, [t]he
use of management indicator species is intended to allow the [Forest] Service to
thoroughly evaluate the effects of the [forest management] alternatives on fish
and wildlife populations by using a class representative, without having to
evaluate each species individually. Inland Empire, 88 F.3d at 762.
Two groups of indicator species are utilized in the Fishlake Management
Plan; one group serves as ecological indicators, (2 AR Doc. 544 at II-27), and
the other represent[s] species of high interest. (Id.) Goshawk, cavity nesters,
riparian dependent guild, sage nesters, macroinvertebrates, and resident trout,
each selected for their sensitivity to habitat change and representative
characteristics, were chosen as ecological indicator MIS in the Fishlake Forest
Management Plan. They were specifically selected to ensure that species with
special habitat needs are adequately considered in forest management activities.
Elk, mule deer, and Bonneville cutthroat trout were selected as high interest
species MIS. These high interest species were selected because of their

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threatened, endangered, or sensitive status, or because of high public interest in

the species.
2
UEC argues that the Forest Service authorized the Monroe Project without
the relevant MIS population datahere, the effect of management activities on
several MISin violation of the APA, the NFMA, the NFMAs implementing
regulations, and the Fishlake Forest Plan. In support of this argument, UEC
claims that the MIS population data was deficient because the Forest Service used
habitat trend modeling as a proxy for actual population surveys, rather than actual
quantitative data, which they argue is required by 36 C.F.R. 219.19. While
conceding that 219.19 applies to the development of Forest Management Plans,
as opposed to specific project level actions, UEC insists that because Forest
Service obligations under the Fishlake Forest Plan continue as long as the Plan is
in existence, the Forest Service is required to evaluate planning alternatives under
219.19 prior to authorizing specific projects, like the Monroe Project.
Accordingly, as a preliminary matter, we must determine whether 219.19
applies to the authorization of the Monroe Project. Consistent with UECs
argument, we have previously applied the 219.19 requirements to project level
actions. For example, in Dombeck, after noting that the Forest Service
implements the Forest Plan through individual projects and that these projects
must be consistent with the Forest Plan, we applied 219.19 to a project level
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action. 185 F.3d at 1168. This application is in accord with the analysis of other
circuits. See, e.g., Sierra Club v. Martin, 168 F.3d 1, 6 (11th Cir. 1999)
(recognizing that although 219.19 applies to the formulation of Forest Plans
rather than to specific projects proposed, the duties of the Forest Service
continue throughout the Plans existence); Inland Empire, 88 F.3d at 760 n.6
(9th Cir. 1996) (reasoning that [b]ecause any [area] contained within the
boundaries of a forest having a plan would be an area . . . covered by a . . . forest
plan, it would [] also be a planning area governed by Regulation 219.19)
(quoting 36 C.F.R. 219.3). Several district court opinions in this circuit have
also applied 219.19 to project-level decisions, see Utah Environmental Congress
v. Zieroth, 190 F. Supp. 2d 1265, 1270 n.1 (D. Utah 2002); Forest Guardians, 180
F. Supp. 2d at 12791280. Moreover, our analysis comports with the NFMA,
which requires that resource management activities be consistent with the Forest
Plan. 16 U.S.C. 1604(i). Similarly, Forest Service regulations direct that
activities affecting [forest] lands . . . shall be based on the plan, 36 C.F.R.
219.10, and at a minimum, all management practices should [p]rovide that
habitat for species chosen under 219.19 is maintained and improved to the
degree consistent with multiple-use objectives established in the plan, 36 C.F.R.
219.27. Because 219.27 contemplates the application of 219.19 to
management activities, and as the Forest Service implements Forest Management
Plan activities by approving specific projects, we are convinced that read as a
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whole, the regulations anticipate application of 219.19 to project level as well

as plan level management actions. Accordingly, we apply 219.19 to the
authorization of the Monroe Project.
3
Having so concluded, we consider UECs argument that 36 C.F.R. 219.19
requires the Forest Service to gather quantitative population data for MIS in its
management planning activities. The Forest Service counters that the regulation
does not require the use of quantitative population data in the monitoring of MIS.
Relying on the plain language of the regulation, the Forest Service claims that
219.19 requires only that it monitor population trends of MIS, leaving the
method of monitoringwhether habitat information, actual population data, or
some combination of the twoto the discretion of the Forest Service. Although
it recognizes that our recent decision in Dombeck, 185 F.3d 1162, did not address
MIS specifically, the Forest Service nevertheless argues that Dombeck supports
using habitat information to satisfy 219 requirements in general. We decline to
read Dombeck so broadly.
Dombeck addressed a challenge to the Forest Services decision to allow
the Vail ski resort to expand. 185 F.3d at 11651167. Colorado Environmental
Coalition, among others, appealed, arguing that the Forest Service failed to
properly analyze the effects of the proposed expansion on the Canada lynx
populations in the area. Id. at 1165. The Coalition argued that the Forest Service
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was required to collect actual population data on the lynx before moving forward
with the expansion; the Forest Service maintained that habitat data could be
substituted in cases where actual population data was unavailable and where
actual data would not enhance the Forest Services analysis because the proposed
action would not result in species loss. Id. at 1168. We were careful to note in
Dombeck that the population inventory requirements of 219.19 that apply to
Management Indicator Species are irrelevant to the issue before us because the
Canada lynx was not an MIS. Id. at 1170. Therefore, our narrow holding was
that the regulatory language does not require the Forest Service, under the
circumstances of this case, to collect actual lynx population data. Id.
Moreover, our reasoning in Dombeck rested on the observation that the
regulatory language clearly presupposes the ascertainable presence of a species
population within a given planning area. Id. at 1169. In the case of the Vail
expansion project, despite good faith efforts to confirm the presence of lynx, no
one has seen an actual lynx in the project area in over twenty-five years . . . .
Id. Because we concluded that Congress could not have intended to require the
Forest Service to collect quantitative population data where no population
exists, id. at 1170, the Forest Services use of habitat analysis information to
examine the effects of the Vail expansion with an eye toward preserving the
potential for a viable lynx population in the area in the future was all that was
required under the regulations. Id. Additionally, we noted our agreement with
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the Ninth Circuit that the Forest Service should use actual population data when
such data is available. Id. at 1170 n.9 (citing Inland Empire, 88 F.3d at 761 n.8).
We are therefore unconvinced that Dombeck supports the Forest Services
interpretation that habitat information alone is sufficient to fulfill its obligations
under 219.
In keeping with the reasoning of the Eleventh Circuit and the district courts
of this circuit, we conclude that 219.19 requires the Forest Service to use actual,
quantitative population data to effectuate its MIS monitoring obligations. Section
219.19 mandates that as part of forest planning, [f]ish and wildlife habitat shall
be managed to maintain viable populations of existing native and desired nonnative vertebrate species. Further, forest management [p]lanning alternatives
shall be stated and evaluated in terms of both amount and quality of habitat and of
animal population trends of the management indicator species, 219.19(a)(2);
similarly, [p]opulation trends of the management indicator species will be
monitored and relationships to habitat changes determined, 219.19(a)(6).
Plainly the regulations require that the Forest Service monitor population trends
of the MIS in order to evaluate the effects of forest management activities on the
MIS and the viability of desired fish and wildlife populations in the forest more
generally.
Our reading of the requirements of 219.19 is strengthened by 219.26,
which provides that to ensure diversity of plant and animals in forest planning,
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inventories which include quantitative data making possible the evaluation of

diversity in terms of its prior and present condition shall be taken. We agree
with the Eleventh Circuit in Martin that these two sections of regulation 219 are
harmonious when read together. Martin, 168 F.3d at 7. Because
MIS are proxies used to measure the effects of management strategies on
Forest diversity . . . [and because ] 219.26 requires the Forest Service to
use quantitative inventory data to assess the Forest Plans effects on
diversity. . . . then, taken together, the two regulations require the Forest
Service to gather quantitative data on MIS and use it to measure the impact
of habitat changes on the Forests diversity.
Id. Similarly, the court in Forest Guardians reasoned that the language of
219.19 required the Forest Service to acquire and analyze hard population data
of its selected management indicator species before approving a timber sale,
because these regulations clearly preclude reliance solely on habitat trend data as
a proxy for population data or to extrapolate population trends. 180 F. Supp. 2d
at 1281. Likewise, we agree that a reading of 219.19 as requiring only habitat
analysis is inconsistent with the regulations plain meaning, Yuetter, 994 F.2d
at 738. Accordingly, we conclude that in order to effectuate its MIS monitoring
duties under the language of its regulations, the Forest Service must gather
quantitative data on actual MIS populations 4 that allows it to estimate the effects
Although the Ninth Circuit has held that monitoring of populations of
management indicator species is not always required, it also modified its holding
by emphasizing, as this Court previously stated in Inland Empire, . . . we would
encourage such analysis. Idaho Sporting Congress, Inc. v. Rittenhouse, 305 F.3d
957, 973 (9th Cir. 2002). In addition, Idaho Sporting Congress held that the
4

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of any forest management activities on the animal population trends, 5 and

determine the relationship between management activities and population trend
changes.
B
Having determined that 219.19 applies to project level activities and
requires that the Forest Service gather quantitative data on specific MIS
populations, we turn to UECs specific objections to the Forest Services approval
of the Monroe Project. In particular, UEC challenges the Forest Services
monitoring of the goshawk, Bonneville cutthroat trout, southwestern willow
flycatcher, sage grouse and sage nesters, and cavity nesters. Although we are not
bound by the district courts findings of fact regarding the Forest Services
monitoring, see Olenhouse, 42 F.3d at 1569 n.16, we will set aside the Forest
Services approval of the Monroe Project only if based on the administrative
record, the decision is arbitrary, capricious, not in accordance with the law, or not
supported by substantial evidence, Hoyl, 129 F.3d at 1382 (citations omitted).
Forest Services use of habitat data as a proxy for actual population data (the
proxy on proxy approach) in that case was arbitrary and capricious. Id. at
97273.
We also note that the Fishlake Forest Plan anticipates the collection of
actual data to fulfill MIS monitoring requirements, as illustrated in the
Implementation chapter of the plan. (2 AR Doc. 544a at V-1, V-6.) Monitoring
techniques, frequency, and reporting standards, among other things, are outlined.
Annual measurement and reporting are required for Management Indicator
Species Population Trends.
5

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Substantial evidence has been variously characterized as evidence sufficient to

justify a courts refusal to direct a verdict in a jury trial, or such relevant
evidence a reasonable person would deem adequate to support the ultimate
conclusion. Id. at 1383 (quotations omitted).
1
With respect to the northern goshawk, UEC maintains that although the
Forest Service has gathered population data in the Monroe Project area, the Forest
Service has not gathered forest-wide data. Because the Forest Service lacks a
forest-wide context in which to place its project population data, UEC argues, it
cannot measure the impact of any change in northern goshawk habitat in the
project area on the diversity of the entire Fishlake Forest. See Martin, 168 F.3d at
7 (holding that NFMA regulations require the Forest Service to gather
quantitative data on MIS and use it to measure the impact of habitat changes on
the Forests diversity). Conversely, the agency maintains that it documented
eleven goshawk territories in the Fishlake Forest, and therefore that completion of
a forest-wide survey is unnecessary and not required by the regulations.
The Forest Service conducted the following surveys: (1) helicopter surveys
of the nesting and foraging habitat for the goshawk on Monroe Mountain in 1999
and 2000; (2) goshawk surveys, relating to active nests and territories, two years
prior to any proposed timber sale in the Fishlake Forest; and (3) a goshawk survey
in the 1994 Burnt Flat Analysis. In addition, the Forest Service mapped
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documented goshawk territories on Monroe Mountain and compiled goshawk

flight data as well as numerous completed goshawk monitoring forms dating from
1999 to 2000. Finally, the Forest Service relied upon information and data
received from an inter-agency Goshawk Conservation Strategy group which
concluded that the current goshawk population is viable in the State of Utah. (5
AR at 2301.)
In finding that the NFMA does not necessarily require context data, the
district court reasoned that because the NFMA requires that the Forest Service
maintain viable populations of MIS, if the Forest Service is able to determine
viability on the basis of the data gathered in the Monroe Project area, then it is
not required to gather forest-wide data. We conclude that forest-wide data is not
required if the Forest Service can determine the viability of the MIS at issue
without a forest-wide survey. We also conclude, based on the data in the
administrative record, that the Forest Services monitoring of the goshawk
fulfilled its obligations under 219.19.
2
As to the Bonneville cutthroat trout, the Forest Service relied on a
Biological Opinion which indicates that the trout were cursor[ily] check[ed] (5
AR at 2221) in 1999 after being reintroduced to Manning Creek in 1996. UEC
argues that this Biological Opinion data is insufficient for two reasons: first,
because the check was cursory and second, because 219.19(b)(6) requires
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population trends of the MIS be monitored and trends cannot be determined

based upon an isolated data point. The district court rejected these arguments,
reasoning that 219.19s monitoring requirements cannot be read to require the
Forest Service to sample the Manning Creek Bonneville cutthroat trout population
because the sampling may harm the reintroduction of the trout in that stream.
The Forest Service also contends that quantitative data on the Bonneville
cutthroat trout had been collected annually at Manning Meadow Reservoir (also in
the Monroe Project area) because the Reservoir operates as Bonneville cutthroat
trout brood stock habitat for Utahs sportfishing stock program. Six years
following the reintroduction of 714 Bonneville cutthroat trout to the Reservoir,
the sportfishing stock program collected over 100,000 eggs from the brood stock.
Manning Creek is stocked from eggs taken from Manning Reservoir. Even
though this data is somewhat limited, on balance, we agree with the district court
that the Forest Service has collected adequate, appropriate quantitative population
data in regards to the Bonneville cutthroat trout in support of its decision to
approve the Monroe Project.
3
Turning to the southwest or southwestern willow flycatcher, a small bird on
the Endangered Species list located within the proposed project area, the Monroe
Project Biological Assessment concludes that the project would create no direct
adverse effects on southwest willow flycatcher or their habitat. (5 AR at 2288.)
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However, no quantitative data on the southwestern willow flycatcher, either

within the Project area, or within the Fishlake National Forest, appears in the
Biological Assessment. Although the Forest Service states, in the FEIS, that
[a]nnual monitoring for presence, abundance, and nesting [of the Southwestern
willow flycatcher] are [sic] conducted by the Forest Service and the Utah Division
of Wildlife Resources, (2 AR Doc. 485 at III-64), we were unable to locate
quantitative data from either the Forest Service or the Utah Division of Wildlife
Resources in the record.
Despite the absence of actual data in the record, the effects analysis in the
FEIS concludes that the current management of the Monroe Project area could
harm the southwestern willow flycatchers habitat. While annual monitoring of
the southwestern willow flycatchers presence, abundance, and nesting is
sufficient to meet the Forest Services obligations under the Fishlake Forest Plan
and 219.19, because we find no such data in the record, we are unable to
conclude that the Forest Service fulfilled its obligations under 219.19 in
monitoring this MIS.
4
Our review of the record regarding sage grouse and sage nesters leads to a
similar conclusion. In its brief, the Forest Service acknowledges that [s]age
grouse are potentially present, unconfirmed sightings of sage grouse have been
made, and habitat suitable for the sage grouse is present in the Monroe Project
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area. (Appellees Br. at 23.) Because, however, the Monroe Project is

anticipated to alter only two or three percent of the sagebrush habitat, the
Forest Service concluded that the Monroe Project will not threaten the viability
of the sage nesters. (Appellees Br. at 4849.)
As to its monitoring obligations, the Forest Service directs our attention to
the Burnt Flat Analysis, which included an analysis of a survey of the sage nesters
(the guild to which the sage grouse belong). The Burnt Flat Analysis, conducted
in 1994, surveyed thirty-seven different species of birds, yet reviewing the Burnt
Flat Analysis included in the record, we discovered no quantitative data regarding
either the sage grouse, or the sage nester guild specifically.
As a final matter, notably, the district court determined that because there
have been no known sightings of . . . Sage Nesters on Monroe Mountain, the
Forest Service could not collect hard population data, and relying in part on
Dombeck, the court refused to interpret the language of the NFMA to require the
impossible. (Dist. Ct. Order at 19.) Although we agree with the district court
that where impossible, the Forest Service is not required by the applicable statutes
and regulations to collect population data, we part with the district courts further
reasoning that when faced with difficult-to-count species, the Forest Service
may reasonably disregard its obligation to obtain quantitative data and choose to
allocate its resources elsewhere. (Id.) This extension of the reasoning of
Dombeck is troublesome in this context, where the Fishlake Forest Plan
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specifically states that the MIS selected for the plan were chosen, in part, due to
[r]elative ease of monitoring. (2 AR Doc. 544a at II-27.) Moreover, because
MIS, if they are to serve their purpose as a class representative in the Fishlake
Forest Plan, should generally not be difficult-to-count species, and because the
Forest Service did not argue to us that the sage grouse and sage nesters are
reclusive and hard to track, we decline to follow the reasoning in Inland Empire,
88 F.3d 754, 763 n.12 (finding that the MIS at issue was a reclusive species and
there was no technically reliable and cost-effective method of counting
individual members of the species).
Of course, not all MIS designated in the Fishlake Forest Plan are
necessarily present within the Monroe Project area, and we do not require the
Forest Service to attempt to track species where no population exists,
Dombeck, 185 F.3d at 1170. We do, however, conclude that good faith efforts
to confirm, Dombeck, 185 F.3d at 1169, the absence or presence of an MIS
species by the Forest Service is necessary in order to fulfill its MIS monitoring
obligations under 219.19. Here, despite unconfirmed sightings of the sage
grouse within the Monroe Mountain project area, the record reflects no attempt by
the Forest Service to confirm the presence of this MIS. Accordingly, we find that
the Forest Service did not comply with 219.19 with respect to the sage grouse
and sage nester guild MIS within the Monroe Project area.

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5
Finally, we address the Forest Services monitoring of the cavity nesters.
The district court stated that there have been no known sightings of Cavity
Nesters . . . on Monroe Mountain. (Dist. Ct. Op. at 19.) The Forest Service,
however, does not assert on appeal that there have been no sightings of cavity
nesters, nor does it direct this court to record reference where we might locate
evidence to support the district courts conclusion. Rather, to support its
monitoring of the cavity nesters, the Forest Service relies upon the
aforementioned Burnt Flat Analysis from 1994 and additional studies of the threetoed woodpecker, a member of the Cavity Nester guild, as evidence of its
monitoring of this MIS guild. Reviewing the three-toed woodpecker information
in the record, we arrive at a brief discussion in the Biological Evaluation on
Sensitive Species of the effects of the Monroe Project on the woodpecker that
observes prey abundance, soil, water, and air quality changes resulting from the
project could indirectly effect the three-toed woodpecker. For example, the
Biological Evaluation speculates that tree harvesting could result in woodpecker
relocation, possibly causing a compression of the woodpeckers in one area. Also
included is a map indicating the Cavity, Feed & Nest Tree Locations of the
three-toed woodpecker in the Fishlake National Forest as of the summer of 2000.
(5 AR at 2234.) The Biological Evaluation concludes that individual
woodpeckers and woodpecker territory may be affected by the Monroe Project,
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however those effects will not lead to a loss of population viability for the threetoed woodpecker, and that the Monroe Project should result in a increased
availability of snag trees, which is cavity nester habitat.
Our review of the record reveals no quantitative data for either the cavity
nester guild or the three-toed woodpecker species; the woodpecker map is
apparently based on actual data collected, and the FEIS observes that nest
building activity for the three-toed woodpecker in the Monroe Project area has
been observed. (2 AR Doc. 485 at III-68.) While the Forest Service contends
that woodpecker survey work . . . [and] a graduate study on three-toed
woodpecker distribution have been completed, the record citation is to a letter
asserting this information has been collected, not to actual data. (5 AR at 2205.)
It appears that hard quantitative dataat least sufficient to create the woodpecker
mapwas collected on the three-toed woodpecker; nevertheless, quantitative data
sufficient to determine population trends of the three-toed woodpecker was absent
from the record before us. Accordingly, we determine that the Forest Services
monitoring of the cavity nester guild, through its monitoring and evaluation of the
three-toed woodpecker, was insufficient to comply with the requirements of
219.19.
III
We now turn to UECs claim that the Forest Service illegally revalidated
roadless areas during the development of the Monroe Project. In 1979, the
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Roadless Area Review and Evaluation II (RARE II) resulted in a nationwide

inventory of roadless areas potentially suitable for wilderness designation. See
Block, 690 F.2d at 758. The Forest Service concedes that four areas of the
Fishlake National Forest were designated IRAs in the RARE II inventory. Forest
Service regulation 219.17(a) provides that, [u]nless otherwise provided by law,
roadless areas within the National Forest System shall be evaluated and
considered for recommendation as potential wilderness areas during the forest
planning process . . . . 36 C.F.R. 219.17(a).
In conjunction with the Monroe Project, the Forest Service changed the
boundaries of certain IRAs within the project area. UEC argues that the Forest
Services approval of the Monroe Project was unlawful because it depended upon
an illegal and improper revalidation of the boundaries of the roadless areas in
the Monroe Mountain project area. (Appellants Br. at 16.) According to UEC,
the roadless area inventory may be modified only at the forest planning level, and
thus the Forest Services approval of the Monroe Project, which UEC argues was
based on the revalidation of the IRA boundaries, was arbitrary and capricious.
Assuming that UEC is correct that the Forest Service may only redraw IRA
boundaries at a forest plan level, nonetheless, UEC has failed to identify any
applicable limitation on the Forest Services discretion to undertake the proposed
Monroe Project management activities within the IRAs regardless of the Forest

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Services revalidation. See infra Part I (outlining the proposed management

activities).
Nothing in 219.17 restricts the Forest Service's discretion in managing
roadless areas. Under 219.17, moreover, areas which have already been
designated as wilderness or for nonwilderness uses by law need not be evaluated
as potential wilderness areas. 36 C.F.R. 219.17(a)(1)(i). In this case, the
subject roadless areas were designated for multiple use by Congress in the Utah
Wilderness Act of 1984, Pub. L. No. 98-428, 201(a)(2), 98 Stat. 1657 (1984),
which was passed after completion of RARE II. The stated purposes of the Act
were to designate certain national forest system lands in the State of Utah for
inclusion in the National Wilderness Preservation System and to release other
forest lands for multiple use management. Utah Wilderness Act of 1984.
Accordingly, the Act designated twelve specific IRAs in Utah as components of
the National Wilderness Preservation System. Id. at 102. None of the Fishlake
National Forests IRAs were so designated. By default, the Act provides that all
areas covered by RARE II not designated as wilderness areas by the Act shall be
managed for multiple use in accordance with land management plans . . . . Id.
201(b)(3).
Although UEC directs our attention to the Draft Inter-Mountain Region
Planning Desk Guide, the Guide merely contains guidelines for implementing
219.17 and the Forest Service Handbook. There is no indication in the Desk
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Guide itself or elsewhere that the Desk Guide restricts the Forest Services
discretion in managing IRAs. In addition, UEC relies on the Forest Service
Handbook, 1909.12, Chapter 7 to support its position. However, that chapter
merely describes the process for identifying and evaluating potential wilderness
in the National Forest System, id. at chap. 7, and sets forth criteria for
determining whether [r]oadless areas qualify for placement on the inventory of
potential wilderness, id. at 7.11. Nothing in 1909.12 restricts the Forest
Services discretion in managing IRAs.
Finally, in its reply brief, UEC directs our attention to the so-called
Roadless Rule, 36 C.F.R. 294.10-14 (2003). Section 294.12 prohibits, with
certain exceptions, road construction in certain inventoried roadless areas.
Section 294.13 prohibits, with certain exceptions, timber cutting or removal in
inventoried roadless areas. We need not decide whether the Monroe Project runs
afoul of these new regulations, or if they are even valid, because they became
effective in January 2001 and do not apply retroactively. See 36 C.F.R.
294.14(c) (stating new rules do not revoke, suspend, or modify any project or
activity decision made prior to January 12, 2001). If anything, the fact that these
rules were propounded suggests that the Forest Service previously was not
restricted in its management of roadless areas. See 36 C.F.R. 294.10 (stating
purpose of rules is to provide, within the context of multiple-use management,
lasting protection for inventoried roadless areas within the National Forest
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System). In sum, UEC has failed to identify any applicable limitation on the
Forest Services discretion to implement the proposed Monroe Project within the
pre-revalidation IRAs, and thus we cannot conclude that the Forest Services
authorization of the Monroe Project was dependent upon the revalidation.
Accordingly, we reject this claim of error.
IV
Because we conclude that the Forest Service has not complied with its
duties under Forest Service regulations to monitor several of the relevant
management indicator species, we conclude that the Forest Services
authorization of the Monroe Project was arbitrary and capricious. We REVERSE
the district courts order affirming the Forest Service Record of Decision
authorizing the Monroe Project and REMAND for further proceedings in
compliance with this ruling.

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03-4080, Utah Envtl. Congress v. Bosworth

BALDOCK, J., Circuit Judge, Concurring
I concur fully in parts I, II.A., II.A.1., II.A.2., II.B., and III of the Courts
opinion. I do not, however, join part II.A.3. of the opinion. Unlike the Court, I
find it unnecessary to delve into the arduous task of interpreting 36 C.F.R.
219.19 (1999). 1 As the Court correctly explains, any projects undertaken by
the Forest Service in the Fishlake National Forest must be consistent with the
Fishlake Forest Plan. (Courts Op. at 3). The Fishlake Forest Plan requires the
Our sister circuits have disagreed on the amount of analysis the Forest
Service must perform in order to satisfy its duties under 219.19. The Ninth
Circuit, for example, held the Forest Service satisfied its management indicator
species monitoring responsibilities when it conducted a habitat viability
analysis; that is, when it estimated the effects of the alternatives [proposed for a
project] on the population of the management indicator species by analyzing the
amount of the species habitat that would be reduced by each alternative. Inland
Empire Pub. Lands Council v. United States Forest Serv., 88 F.3d 754, 763 (9th
Cir. 1996) (emphasis added); see also Ind. Forest Alliance, Inc. v. United States
Forest Serv., 325 F.3d 851, 864 (7th Cir. 2003) (holding the Forest Services use
of habitat as a proxy for actual population data was reasonable because the
forest plan only required the agency to monitor population trends.). The
Eleventh Circuit, however, has held that a habitat viability analysis does not
satisfy the language of 219.19. Sierra Club v. Martin, 168 F.3d 1, 7 (11th Cir.
1999). The Eleventh Circuit specifically rejected the Ninth Circuits habitat
analysis approach and held the Forest Service was required to gather quantitative
data on management indicator species. Id.; see also Utah Envtl. Congress v.
Zieroth, 190 F. Supp. 2d 1265, 1271-72 (D. Utah 2002) (holding forest service
must obtain quantitative population data); Forest Guardians v. United States
Forest Serv., 180 F. Supp. 2d 1273, 1279 (D.N.M. 2001) (same). Moreover,
while the Courts interpretation of 219.19 is important to the resolution of the
case at hand, the Forest Services adoption of new planning regulations
effectively moots the issue in future cases. See 36 C.F.R. 219.19,
219.20(a)(ii), 219.26 (2003); see also 64 Fed. Reg. 54,074 at 54,088 (1999)
(explaining the new planning regulations have not adopted the substantially
criticized concept of management indicator species).
1

collection of quantitative data to fulfill its MIS monitoring requirements. (2 AR

Doc. 544a V-1 to V-3, V-6; Courts Op. at 16 n.5). The majority correctly
concludes the Forest Service collected such quantitative data with respect to the
northern goshawk and Bonneville cutthroat trout. The majority also correctly
explains a review of the administrative record does not reveal any quantitative
data with respect to the southwestern willow flycatcher, sage grouse, sage nester,
or cavity nesters. 2 Because the Forest Service failed to comply with the Fishlake
Forest Plan, I would hold the Forest Services authorization of the Monroe Project
was contrary to law. See 5 U.S.C. 706(2)(A); 16 U.S.C. 1604(i).

As the Court explains, the one possible exception is a map in the

administrative record regarding the three toed woodpecker (a cavity nester). (5
AR at 2234). The map, however, contains no quantitative data. Furthermore, the
map is unclear as to whether it represents actual woodpecker sightings or only
sightings of trees where a woodpecker may have eaten, nested, or drummed.
2

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